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Abstract
1. Introduction
Questions of how courts interpret, and should interpret, contract terms and
when courts imply, and should imply, terms to which the contracting parties
have not explicitly agreed, loom large in contract disputes and in the legal
literature on contract law. Law and economics scholars, however, have written
far more extensively on other topics in contract law than on these questions.
For example, Judge Posner’s treatise has no section specifically discussing
interpretation or implied terms, and discusses contractual good faith in only
two paragraphs (Richard Posner, 1998, pp. 103, 126). Other leading textbooks
also have no discussion of interpretation or implied terms. One possible
explanation for this discrepancy is that there is little need for research
specifically on interpretation and implied terms because much of the economic
analysis of other areas of contract law carries over straightforwardly to these
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4400 Implied Terms and Interpretation in Contract Law 79
Economic analyses of contract law have tended to start with the idealized
concept of a ‘complete’ contract, though this term has perhaps engendered
more confusion than clarity. Traditionally, a complete contract has referred to
one that provides a complete description of a set of possible contingencies and
80 Implied Terms and Interpretation in Contract Law 4400
information. A complete contract is one that makes full use of the private
information available to the contracting parties (Hermalin and Katz, 1993, p.
235). The point of this definition is to make clear that parties can write efficient
contracts that do not expressly specify the response to every contingency, yet
obviate the need for court intervention (Hermalin and Katz, 1993, p. 242). But
the fact that parties may in a simplified model be able to write ‘economically
complete’ contracts does not answer the question of whether in a given legal
dispute they have in fact written one. And the ability of private parties to write
economically complete contracts in the real world is unclear. We do not seem
to see, for example, contracts of the type described by Hermalin and Katz, in
which the contract leaves the quantity and price unspecified, then after some
period one party names the price and the other names the quantity. Perhaps the
costs of writing these contracts (including the costs of strategic circumvention)
are too high. Perhaps the current enforcement regime interferes with, or
discourages, the parties, writing of such contracts, though this seems unlikely.
It seems fair to say, however, that many if not most contracts are
incomplete, or at least the question of their completeness is itself a legitimate
question for judicial interpretation. The incompleteness may be intended by
both parties, which creates so-called ‘relational contracts’ (Goetz and Scott,
1981), or ‘fiduciary contracts’ (Easterbrook and Fischel, 1983, p. 438). It may
result from unintended ‘formulation error’ which occurs when, as a result of
defective contractual instructions, the occurrence of some contingency produces
surprising consequences (Goetz and Scott, 1985, p. 267, n. 11). It may result
from strategic withholding of information by one party. Or incompleteness may
result from court error. Whether a contract that the parties think is complete,
but is misinterpreted by a court, should in fact be viewed as an ‘incomplete’
contract depends on how completeness is defined. If completeness is defined
with reference to the obviation of interpretive questions, the definition must
assume that completeness means that a contract’s terms are ‘unambiguous’,
that is, the contract terms represent a confluence of the parties’ intentions and
the court’s ability to interpret those intentions correctly (unless the contract is
somehow self-enforcing).
Incomplete contracts may be efficient contracts, even if the incompleteness
is unintended. The costs of contractual completeness would often exceed the
benefits, just as the costs of reducing crime or pollution or accidents to zero
would exceed the benefits. Incomplete contracts will tend to be efficient when
contracts are relatively complex, that is, when there are a large number of
low-probability contingencies that could affect the value of contractual
performance, and the efficient responses to those contingencies vary greatly and
so cannot easily be specified in advance (Hadfield, 1994, p. 165, n.15). In these
cases the transaction costs of negotiating, drafting, monitoring, and enforcing
a complete contract are high.
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Now suppose the contract is incomplete, as are most contracts that are the
subject of litigation. What should a court do? The economists’ (and courts’)
usual assumption is that courts should follow the intentions of the parties, but
to admit incompleteness is to admit that the intention of the parties is
uncertain, or at least disputed (some would say nonexistent). The next best
solution is to adopt the term - or interpretive methodology - the parties would
have chosen had they bargained over the matter, that is, presumed or
hypothetical intent. But how is presumed intent determined?
There are two general possibilities on which economic analyses have
focused (Hadfield, 1992, 1994, p. 161). First, courts might presume that
complete contracting is both feasible and desirable. This presumption has both
a positive and a negative component. On the positive side, the express terms of
the contract are presumed to be the best approximations of the parties’
intentions and deemed to create a complete contract. This strategy is usually
referred to as textualism. On the negative side, if parties fail to write a complete
contract, the incompleteness is presumed to be inefficient, whether unintended
4400 Implied Terms and Interpretation in Contract Law 83
or strategic, and the court’s approach should be to deter this behavior and
encourage complete contracting. This strategy is a variant of what has come to
be known as penalty defaults (Ayres and Gertner, 1989), which is itself a
variant of an old idea in the Austrian School of economics that individuals
should bear the consequences of their actions so that they become more rational
over time (for example, Wonnell, 1986, p. 520).
The second general approach involves a presumption that contractual
incompleteness is unavoidable and/or desirable, due to limitations of money,
time, comprehension and foresight (Hadfield, 1992, p. 259). The courts then
fill in the gaps by presuming the parties intended to contract with reference to
some standard external to the written contract. Courts might presume parties
contracted with reference to their current (course of performance) or prior
(course of dealing) conduct, or to the conduct and understandings of similarly
situated parties (trade usage or custom or business mores). Strategies that focus
on these presumptions, which are featured predominantly in the Uniform
Commercial Code, are usually referred to as contextualist. Alternatively, courts
might presume the parties contracted with the expectation that courts would fill
in any gaps with a joint maximizing term that would have been written by
rational parties under conditions of low transaction costs (Goetz and Scott,
1981). In practice, the joint maximization strategy will often dissolve into
contextualism, as courts lack the data necessary to do pure joint maximization.
It is important to remember that all of these strategies involve presumptions.
It is all too easy for courts or proponents of a particular strategy to criticize the
alternatives as failing to hew closely enough to the parties’ intentions, when in
fact the parties’ intentions in incomplete contracts are at least uncertain, and
the question is which strategy is more likely to be successful at approximating
these intentions. For example, suppose a buyer rejects goods delivered late after
the market price drops below the contract price. A court might be called upon
to decide whether to imply a good faith limitation on the buyer’s ability to
reject. A textualist might argue no on the ground that such an implication
would be contrary to the parties’ intentions as expressed in the time of delivery
term. But the parties’ intentions - whether actual or hypothetical - may well be
that a good faith obligation should be implied rather than that the time of
delivery term should be interpreted as absolute. A proposition that textualism,
contextualism, penalty defaults, or joint maximization best represents the
parties’ intentions needs to be defended. Economic analysis can help to identify
the conditions under which the various interpretive strategies are more likely
to approximate the parties’ intentions, and whether courts are better off
pursuing a pure interpretive strategy or a mixed one.
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The mirror image issue is presented by the doctrine of certainty, which says
that courts may sometimes decline to fill gaps the parties have left in contracts.
The doctrine could be viewed as a default if one is willing to presume that when
the parties have left ‘too many’ gaps for the courts to fill, they do not have
contractual intent, and if they do have such intent they will override the default
by filling in the terms themselves. Alternatively, the doctrine could be viewed
as a mandatory rule if one assumes that the courts use it to refuse to fill in gaps
when the parties wanted them to.
The point is that the labels ‘default’ and ‘mandatory’ are conclusions that
can mask the assumptions being made about contractual completeness and
intent, and so do not by themselves resolve the questions of implied terms and
interpretation.
If the contracting parties wanted to write a complete contract but failed in some
way, the failure can be viewed as analogous to an accident in tort law. The
accident may occur because one or both parties failed to take cost-effective
‘contract-based precautions’ (Cohen, 1992, p. 949). Alternatively, one of the
parties might make a contract incomplete to serve his strategic bargaining
interests by withholding information. In either case, courts can use the
doctrines of interpretation and implied terms to encourage the parties to
‘facilitate improvements in contractual formulation’ (Goetz and Scott, 1985,
p. 264). One way to encourage better contracting is to encourage more complete
contracts, that is, the greater use of express written terms. If a court is willing
to ‘insure’ parties through flexible interpretations and implied terms it creates
a classic moral hazard problem: the parties have less incentive to write good
contracts themselves, for example contracts with more precise language.
Doctrines such as the parol evidence rule encourage parties to write more
complete contracts by giving more weight to the written document and limiting
the extrinsic evidence courts can consider. Strict application of these doctrines
may thereby increase the accuracy of contract enforcement (reduce contractual
accidents) by reducing the interpretive risks of relying on extrinsic evidence
(Eric Posner, 1998, p. 546).
As in tort law, the goal of encouraging better contracting makes economic
sense if the precautions are cost-effective. That will be the case if one or both
of the contracting parties face low ex ante transaction costs of drafting and
monitoring express contract terms that successfully specify performance
obligations in response to different regret contingencies, as well as if the
expected losses from interpretive accidents are high (Eric Posner, 1998, pp.
543-547). Moreover, courts must be able to identify accurately situations in
86 Implied Terms and Interpretation in Contract Law 4400
which precautions are cost-effective. Usually, the best courts can do is to use
proxies to make reasonable comparative judgments. In particular, in
investigating precautions, courts can compare the capabilities of contracting
parties and they can compare the contract in dispute to other litigated contracts
(Eric Posner, 1998, pp. 553-561).
In comparing contracting parties, courts might conclude that one
contracting party is the ‘least cost avoider’, or in this case the ‘cheaper contract
drafter’, namely the party in a better position to clarify a term or to identify
what should happen in the event of some contingency. This approach explains
such interpretive rules such as contra proferentum, which encourage the party
in the better position to draft a more complete contract to do so. Similarly, if
one of the parties is a repeat contractor or is assisted by legal counsel and the
other is not (as in many consumer contracts), imposing liability on the repeat
and represented contractor in cases of contractual ambiguity or incompleteness
will encourage that party to improve the terms of its contracts. In addition, if
one of the parties has an informational advantage, imposing liability on that
party could encourage similarly situated parties in the future to reveal the
information. But there may not always be a ‘cheaper contract drafter’, or if
there is, the necessary precautions might not be cost-effective. Such might be
the case, for example, with a party who commits a ‘scrivener’s error’ in a
written contract, especially if the error is one that the other party could
reasonably have noticed.
The alternative of comparing similar contracts rather than contracting
parties can also yield some useful guidelines. For example, one piece of
relevant evidence about ex ante transaction costs would be how common a
particular term is in similar contracts. The more common a term, the more
likely the costs of contracting over that term are low. Courts can then presume
that most parties who wanted such a term would have contracted expressly for
it and those who have not can be deemed negligent or strategic. Alternatively,
one might argue that transaction costs are low for relatively ‘simple’ contracts
or for ‘crucial’ terms. But even if courts are able through comparative analysis
to identify simple contracts or common or crucial terms, there is a further
difficulty: ease of contracting may not be a sufficient justification for imposing
liability.
The reason is that encouraging better contracting does not necessarily mean
encouraging greater contractual completeness; it may mean encouraging
greater contractual incompleteness through reliance on implied terms. Under
a majoritarian default approach to implied terms, courts would minimize
transaction costs by choosing the mix of express and implied terms that most
contracting parties would want. The majority of contracting parties might want
courts to use implied terms, especially in well-developed markets, because they
believe that will save on the costs of contracting, even if the transaction costs
of contracting are relatively low. Alternatively, the majority of contracting
parties might believe that relying solely on express terms - even those that
4400 Implied Terms and Interpretation in Contract Law 87
simply try to mimic implied terms - might be less reliable than relying on
well-established implied terms either in conjunction with or instead of express
terms; that is, they might fear court misinterpretation more than court
misimplication. The only contracting parties who should be encouraged to
contract more explicitly under this approach are those who have ‘idiosyncratic’
preferences. Thus, the fact that parties fail to contract expressly (or
unambiguously) for a given term - even a common or crucial one - may simply
be an expression of intent to be bound by the majoritarian understanding of that
obligation.
An example of the majoritarian default approach is the rule that contracting
parties ‘in the trade’ are bound by trade usages, even if they did not know about
them. This rule encourages the parties in a trade to develop such usages (which
are majoritarian understandings) and to familiarize themselves rapidly with
these usages, hence reducing the need for heavily lawyered documents (Warren,
1981). Thus, implied terms serve as a public good, a standard set of contract
terms that parties either accept or reject. The same majoritarian approach could
also apply to the interpretation of express terms. The ‘plain meaning rule’
could be viewed as a way of encouraging contracting parties to learn the
common (one might even say implied) meaning of words, thus reducing the
need for and costs of elaborate definition and explanation.
Of course, the majoritarian approach to encouraging better contracting itself
presents problems. For example, identifying the majoritarian default seems to
call for an empirical inquiry, which courts are often ill-equipped to make,
though to the extent that there is a recognized trade usage, or a course of
dealing or course of performance, this problem is mitigated. Verkerke (1995)
attempts to remedy this problem in the context of employment contracts by
surveying employers about the discharge terms contained in their employment
documents. He found that 52 percent of employers reported that their
employment documents specified an ‘at will’ provision (the prevailing default),
15 percent reported that their documents contain a ‘just cause’ provision, and
33 percent reported that they do not have documents that address the issue
explicitly (Verkerke, 1995, p. 867). He also found that larger firms and firms
from more ‘liberal’ jurisdictions are more likely to contract explicitly for the at
will rule. From these data, Verkerke concludes that the at will default is the
majoritarian default. A more cautious conclusion would be that a broadly
defined just cause provision is not a majoritarian default, but given the
limitations many states have put on the at will doctrine and the possibility of
unwritten (or written, but narrow) qualifications on the right to discharge,
whether the majoritarian default is the strong form of the at will doctrine
expressed in many employer documents or a more limited form is less clear.
An additional problem with the majoritarian default approach is the need
to determine when the parties have contracted around the default. Goetz and
Scott (1985) argue that it is often difficult for courts to tell whether parties are
88 Implied Terms and Interpretation in Contract Law 4400
using express terms to trump (opt out of) implied terms or merely to
supplement them. That is, it may be difficult for courts to tell in a particular
case whether the parties intended to incorporate implied terms by writing an
incomplete contract, or whether they intended the express terms they used to
create a complete contract; thus, the contractual ‘accident’ results from the
parties’ unintended failure to resolve the tension between the express terms and
implied terms. The more courts favor and encourage implied terms and
common usages, the more costly it becomes for the parties who want to contract
out of those terms to do so. As discussed above, ostensible default rules begin
to look more like mandatory rules. The courts’ choice of interpretive strategy,
therefore, may affect not only the parties’ incentives to contract more expressly,
but also their ability to contract around the implied default rule.
Goetz and Scott argue that the more likely it is that contracting parties will
be unhappy with the court’s implied terms and interpretations - the more
heterogeneous contracting parties are likely to be - the more inefficient an
expansive approach to implied terms and interpretation will be. In contrast,
where contracting parties are more likely to engage in homogeneous and
repetitive transactions - that is, where the transactional variance is low - the
more likely a contextual approach will be efficient because it will foster the
development of more standardized terms by trade groups, lawyers, and the
parties themselves. One could also justify the contextual approach in such cases
on the ground that in ‘conventional’ contracts, court error is likely to be low
(Eric Posner, 1998, pp. 553, 556). Implementing this notion is often more
difficult than stating it, however.
For example, Goetz and Scott suggest that in well-developed markets courts
should generally allow context evidence to supplement express terms, but
should generally not allow context evidence to override the plain meaning of
express terms (Goetz and Scott, 1985, pp. 313-315). Eric Posner has recently
criticized this argument on the ground that there is no theoretical justification
for having a flexible approach with respect to incompleteness (implied terms)
but a strict approach with respect to ambiguity (interpretation of express terms)
(Eric Posner, 1998, pp. 559-560). On the one hand, it should not matter
whether the parties use, for example, a best efforts clause or leave one out and
let the court imply it; if the courts consider extrinsic evidence in one case, they
should do so in the other. On the other hand, the ‘plain meaning’ of a best
efforts clause requires a kind of context evidence, namely the general
understanding of the clause. Thus, there may be no inconsistency in having a
flexible approach to incompleteness and a plain meaning approach to
ambiguity: both favor allowing a certain type of contextual evidence, namely
general contextual evidence. The problem arises when the contextual evidence
being considered is not general but specific to the contracting parties, such as
course of dealing, course of performance, or prior negotiations. Here a flexible
4400 Implied Terms and Interpretation in Contract Law 89
Getting the mix of express and implied contracting terms right - that is,
encouraging the optimally complete written contract - is only one consideration
(and perhaps not the most important) that courts do or should face when
deciding questions of interpretation or implied terms. A second approach to the
question of how courts should interpret contracts and when they should imply
terms focuses not on encouraging efficient contracting, but on deterring
opportunistic contractual behavior (though obviously the two overlap).
Opportunism can be broadly defined as deliberate contractual conduct by one
party contrary to the other party’s reasonable expectations based on the parties’
agreement, contractual norms, or conventional morality (Cohen, 1992, p. 957).
Alternatively, opportunism is an attempted redistribution of an already
allocated contractual pie, that is a mere wealth transfer (Muris, 1981; compare
Burton, 1980, p. 378). For example, a contract may require B to paint A’s
portrait ‘to A’s satisfaction’ (Richard Posner, 1998, pp. 103-104). This
provision allows A to reject the portrait even if others like it if it does not suit
A’s taste. But if A rejects the portrait for reasons other than unhappiness with
the painting’s quality - say because A remarries a spouse who does not want
A’s portrait in the house - A acts opportunistically.
The problem of opportunistic behavior is perhaps the key justification for
court intervention in contracts. In general, ‘the threat of opportunism increases
transaction costs because potential opportunists and victims expend resources
perpetrating and protecting against opportunism’, which ‘do not help produce
4400 Implied Terms and Interpretation in Contract Law 91
In many contractual disputes, there are often precautionary steps that both
parties could have taken to have avoided or mitigated the contractual loss. We
have already considered one such precaution - drafting a better contract. Quite
separate from the costs of drafting better terms are the costs of reducing the
likelihood of, or harm from, some risk ex ante, and of mitigating losses ex post.
Parties seeking to have the court imply or interpret a term in their favor may
be attempting to avoid a risk that the contract assigned to them or to extricate
themselves from a vulnerable position of their own making, which they could
have avoided at low cost.
In these cases, courts may have to make judgments about the relative fault
of both parties to decide whose behavior it is more important to deter in a
particular case. In particular, if one party is the least cost avoider of some
contingency while the other party regrets the contract for other reasons and is
opportunistically seeking to avoid its obligations, courts face a
‘negligence-opportunism tradeoff’ (Cohen, 1992, pp. 983-990). To take a
classic example, suppose a builder promises to use a particular brand of pipe
in building a house but inadvertently substitutes a different, but functionally
equivalent brand, a fact not discovered by the owner until the house is nearly
completed. The owner refuses to make the final payment on the house. The
court must choose between placing liability on the negligent builder or the
potentially opportunistic owner. There is an economic case to be made that
opportunism - if sufficiently proved - is more costly behavior and deterrence of
that behavior should take priority (Cohen, 1992). On the other hand, the more
likely it is that the builder ‘built first and asked questions later’ (Goldberg,
94 Implied Terms and Interpretation in Contract Law 4400
1985, p. 71), the more willing courts should be to find for the owner by
implying a condition.
To take another example of the negligence-opportunism tradeoff, suppose
that a buyer rejects goods delivered late after a market price drop and the seller
sues. There are two contingencies here: the price drop and the late delivery.
The contract assigns the risk of the price drop to the buyer and the late delivery
to the seller. Textualism will not resolve this dispute: either the price term or
the time of delivery term cannot be read absolutely. It is not sufficient to say
that only the seller has breached, because what constitutes a breach and the
consequences of that breach are precisely what is at issue. Nor can it be said
that only the seller could take precautions here because neither party could do
anything about the price drop and the buyer did not cause the delay in delivery.
If the buyer’s rejection is viewed as opportunistic behavior, then refraining
from such behavior could be viewed as a ‘precaution’. Depending on the
circumstances, there is an economic argument to be made for implying a good
faith ‘limitation’ on the buyer’s ability to escape its obligations.
8. Court Error
court error by adjusting the price of the contract rather than by declining to
contract. On the other hand, if courts are of higher, but still limited,
competence, then enforcement of good faith clauses may lead to greater joint
profits for the parties than nonenforcement. This will occur if the court error
does not have too severe an adverse effect on the parties’ incentives, and if the
private mechanisms for inducing optimal effort without court enforcement are
relatively weak.
In addition, Hadfield argues that courts of low competence should not
follow bright line rules or precedent, but instead should use standards. By
bright line rules she means rules requiring a certain level of conduct that is
independent of changing economic conditions; for example, a bright line rule
might say to a supplier in an output contract that to act in good faith it cannot
reduce its output to zero unless continued production puts the firm on the verge
of bankruptcy. By standards she means required actions that vary depending on
the economic circumstances, such as a rule that says an agent subject to a best
efforts clause must adopt reasonable sales methods. Bright line rules thus
correspond to textualism, whereas standards correspond to contextualism.
Bright line rules may compound rather than ameliorate court error by a court
of limited competence, because a bright line rule setting forth a required action
will so often be ‘wrong’. Thus, parties will respond to a bright line rule either
by ignoring it or by conforming their behavior to the inefficient safe harbor
established by the rule. Standards, by contrast, are more likely to encompass the
‘efficient’ response because courts using standards will set the minimum
required action low and set the safe harbor high. Thus, contracting parties are
likely to realize that their marginal liability can be reduced through increases
in cooperative effort (because courts are likely to notice and take those efforts
into account), and so the parties will be encouraged to take steps in the
direction of optimal behavior. The point is that the presence of court error does
not preclude the desirability of court flexibility.
A similar argument might apply even outside the relational contract
context. The argument for textualism here is that if transaction costs are low,
court error will be minimized because the parties will be encouraged to put
more terms in the writing. Textualist courts will interpret this writing more
accurately than contextualist courts, which will sometimes erroneously rely on
contextual evidence in addition to the writing (Eric Posner, 1998, pp. 545-546).
The argument assumes that transaction costs include, as has been suggested
above, not merely the cost of drafting, but the cost of drafting in such a way that
courts make fewer interpretive mistakes. But low drafting costs may not be
sufficient to ensure that court error is reduced under textualism. If, for example,
drafting costs decrease (as they probably have due to technological progress) so
that it is relatively easy for parties to add more terms to their writings, court
error could in fact increase if more detailed contracts are more likely to have
conflicting terms or courts are more likely to misinterpret a term to cover a
96 Implied Terms and Interpretation in Contract Law 4400
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